WEST PARK HOSPITAL_ HORTON LANE_ EPSOM

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					PLANNING COMMITTEE                      09/00971/RES, 09/00969/LBA,                  ITEM 02
13 MAY 2010                                    09/00968/CAC

WEST PARK HOSPITAL, HORTON LANE, EPSOM

      A. 09/00971/RES Reserved Matters Application pursuant to Outline planning
         permission 02/00348/OUT for the redevelopment of the site for 369 new
         residential dwelling including 149 affordable dwellings, car parking, estate
         roads, vehicle access onto Horton Lane, emergency vehicle access onto
         Christ Church Road, formal and informal open space and landscaping.

      B. 09/00969/LBA Partial demolition, alteration and extension of the Grade II
          listed water tower to facilitate conversion into four residential units.

      C. 09/00968/CAC Demolition of a number of buildings and structures including
          parts of the listed water tower.

STAMFORD               Major Developed Site within the Green Belt,         19.04.10, 15.03.10
                       Conservation Area, Listed Building                            15.03.10
PLANS AVAILABLE HERE
                                                                                Notes
RECOMMENDATION (S)


      A      09/00971/RES
APPROVE RESERVED MATTERS subject to the following
conditions:

(1)     No part of the development shall be occupied until full
        details of both hard and soft landscape works for the
        whole development have been submitted to and
        approved in writing by the Local Planning Authority. No
        part of any individual phase of the development shall
        be occupied until the agreed landscaping works for
        that phase have been carried out as approved. These
        details shall include where appropriate means of
        enclosure, car park surfaces, details of vehicle and
        pedestrian access and circulation areas, gates, hard
        surfacing materials, lighting, bin and cycle storage. All
        soft landscaping in accordance with the scheme, when
        approved, shall be carried out within a period of twelve
        months from the date on which the development of
        each phase is commenced or shall be carried out in the
        first planting season (and seeding season) following
        completion of the relevant phase and shall be
        maintained for a period of five years, such maintenance
        to include the replacement of plants which die.
Reason: In order to ensure a satisfactory form of development
in the interests of visual amenity and the impact of the
development on the surrounding area as required by Policies
DC1, BE1, and NE7 of the Epsom and Ewell District Wide
Local Plan (May 2000).




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PLANNING COMMITTEE                  09/00971/RES, 09/00969/LBA,     ITEM 02
13 MAY 2010                                09/00968/CAC

(2)    Notwithstanding the details shown on the application
       drawings, the following details of the design of the
       buildings are not hereby approved:
           (a)     The use of GRP clad dormer windows, UPVC
                   windows and doors and artificial slate
           (b)     The roof designs of the detached houses
                   types S3L, S4W, S4WA and S4BA
           (c)     The design of the front elevation of house
                   type S4G, in particular the position of the
                   semi-circular pair of windows
           (d)     The position of the two storey bay window
                   on the front elevation 2 of flat blocks C1-5.
        Prior to the commencement of development, amended
       details of the buildings to address the details set out in
       (a) to (d) above shall be submitted to and approved in
       writing by the Local Planning Authority. The
       development shall be carried out in accordance with
       the approved details.
Reason: To secure a satisfactory appearance in the interests
of the visual amenities and character of the locality, including
the West Park Conservation Area, as required by Policies BE1,
BE3 and DC1 of the Epsom and Ewell District Wide Local Plan
2000 and CS5 of the Core Strategy 2007.

(3)   Prior to the commencement of any phase of the
      development, details and samples of the materials to
      be used for the external surfaces of the development in
      that phase shall be submitted to and approved in
      writing by the Local Planning Authority. The
      development shall be carried out in accordance with
      the approved details.
Reason: To enable the Local Planning Authority to exercise
control over the type and colour of the materials so as to
secure a satisfactory appearance in the interests of the visual
amenities and character of the locality as required by Policies
BE1 and DC1 of the Epsom and Ewell District Wide Local Plan
(May 2000).

(4)    Prior to the commencement of the development, full
       details of works and measures to promote
       sustainability both during and after construction, to
       include a minimum of 10% of the total energy
       requirements to be provided from renewable energy
       sources, shall be submitted to and approved in writing
       by the Local Planning Authority. The development shall
       then be carried out and maintained in accordance with
       the approved details. The details shall include the
       installation of meters to monitor the energy output from
       the approved renewable energy systems.
Reason: In order to promote sustainable construction and
development in accordance with Policy CS6 of the Epsom and
Ewell Local Development Framework Core Strategy July 2007.




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PLANNING COMMITTEE                 09/00971/RES, 09/00969/LBA,    ITEM 02
13 MAY 2010                               09/00968/CAC

(5)    The development shall not commence until details of
       measures to avoid harm to reptiles, as outlined in the
       applicants’ Ecological Assessment dated December
       2009 and to Epsom Common SSSI have been submitted
       to and approved by the Local Planning Authority. The
       development shall be carried out in accordance with
       the approved scheme.
Reason: To conserve and enhance biodiversity as required by
Policy CS3 of the Core Strategy 2007.

(6)    Any works to buildings where evidence of use by bats
       has been identified as shown in Table 1 of the
       applicants’ Executive Summary of Bat Survey Results
       and Mitigation dated April 2010 shall be carried out
       outside the period of May to August. Any works to
       buildings where evidence of defunct bat roosts has
       been identified as shown in Table 2 of the applicants’
       Executive Summary shall be carried out under the
       supervision of a suitably experienced bat ecologist.
Reason: To conserve and enhance biodiversity as required by
Policy CS3 of the Core Strategy 2007.

(7)    Any works to the roofs of the retained buildings in the
       development shall not commence until details to
       provide for the access and use by bats, as outlined in
       the applicants’ Executive Summary of Bat Survey
       Results and Mitigation dated April 2010, have been
       submitted and approved by the Local Planning
       Authority. The development shall be carried out in
       accordance with the approved details.
Reason: To conserve and enhance biodiversity as required by
Policy CS3 of the Core Strategy 2007.

(8)    Before any works to trees identified in paragraph 3.4 of
       the applicants’ Executive Summary of Bat Survey
       Results and Mitigation dated April 2010 details of an
       arboricultural health and risk analysis, and an
       assessment of bat potential shall be submitted to and
       approved by the Local Planning Authority. The
       development shall be carried out in accordance with
       the approved scheme.
Reason: To conserve and enhance biodiversity as required by
Policy CS3 of the Core Strategy 2007.

(9)    The development shall not commence until bat and
       barn owl nest boxes have been erected in accordance
       with details submitted to and approved by the Local
       Planning Authority. The boxes shall be retained
       thereafter.
Reason: To conserve and enhance biodiversity as required by
Policy CS3 of the Core Strategy 2007.

(10)   The development works including ground preparation,
       demolition and construction; shall be carried out in


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PLANNING COMMITTEE                 09/00971/RES, 09/00969/LBA,    ITEM 02
13 MAY 2010                               09/00968/CAC

       strict accordance with the agreed Arboricultural
       Methods and Materials Statement and Tree Protection
       Plan dated December 2009 as detailed in the
       supporting statement for the proposed development
       submitted by Landscape Planning LTD.
Reason: To ensure satisfactory protection of trees in the
interest of amenity and environmental protection as required
by Policies CS1 and CS5 of the Local Development Core
Strategy July 2007 and NE5, NE6, NE7 and NE8 of District
Wide Local Plan May 2000.

(11)   Prior to the commencement of any development works
       including ground preparation, demolition construction
       and landscaping, a method statement is to be
       submitted to and approved in writing by the Local
       Planning Authority which sets out how the tree
       protection measures will be supervised and enforced
       on site. The method statement shall include; the details
       of the person who will be responsible for supervision
       of the tree protection, the level and frequency of
       inspections, and the means by which they will
       demonstrate that monitoring is carried out and
       enforced on site. The method statement shall be
       implemented as approved.
Reason: To ensure satisfactory protection of trees in the
interest of amenity and environmental protection as required
by Policies CS1 and CS5 of the Local Development Core
Strategy July 2007 and NE5, NE6, NE7 and NE8 of District
Wide Local Plan May 2000.

(12)    Only tree work as listed under the preliminary
        management recommendations in the Arboricultural
        Methods and Materials Statement dated December 2009
        submitted by Landscape Planning LTD and as
        amended by the Tree Removal Plan drawing number
        A6011/2.1/007 shall be carried out with the following
        exceptions:-
        Trees No T13, T29, T109, T105, T125, T133, T137 T239
        G32 and the Lombardy Poplar within G14 shall not be
        removed – 2 Corsican Pines within G16 adjacent to plot
        S4W95 shall have the crowns raised to 5m ground
        clearance on the house side, the Leyland Cypress
        within G46 and G47 shall be felled and Oaks T6 and T20
        should be pollarded not felled.
        Any other tree work in connection with the
        development work, other than removal of dead wood
        and fractured branches will require prior consent from
        the Local Planning Authority in writing.
Reason 1) It is not considered that there is sufficient
justification to fell those trees listed as exceptions above on
the grounds that they are in a poor condition or incompatible
with the development
Reason 2) To exercise control over tree/hedge retention and
surgery operations during the development of the site in the


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PLANNING COMMITTEE                    09/00971/RES, 09/00969/LBA,   ITEM 02
13 MAY 2010                                  09/00968/CAC

interest of amenity and environmental protection as required
by Policies CS1 and CS5 of the Local Development Core
Strategy July 2007 and NE5, NE6 NE7 and NE8 of District Wide
Local Plan May 2000.

(13)   Before development commences, a detailed schedule
       of all secondary windows to be obscure glazed shall be
       submitted to and approved in writing by the Local
       Planning Authority and the development shall then be
       carried out in accordance with the approved schedule.
Reason: To ensure a satisfactory level of privacy in
accordance policy DC1 of the Epsom and Ewell District-Wide
Local Plan 2000.

Informatives:

1         This permission is granted on the basis that the
          development either meets or does not significantly
          conflict with the relevant policies of the Epsom and
          Ewell District Wide Local Plan 2000, Local Development
          Framework Core Strategy 2007 and does not cause
          demonstrable harm to interests of acknowledged
          importance.
          The application was considered having taken account
          of all material considerations and all representations.
          The specific policies of the Local Plan and Core
          Strategy taken into account were GB7, GB8, NE2, NE5,
          NE7, NE8, BE1, BE3-5, BE11, BE19, DC1, MV8, HSG11,
          CS1-9, CS12, CS13 and CS16.

2         The applicant is advised that this planning approval
          only relates to the reserved matters referred to in
          Condition No.1 of the outline planning permission
          02/00348/OUT and for the landscaping only to the
          landscape strategy.

3         The conditions above are in addition to those attached
          to the outline planning permission and the
          requirements of the associated Section 106 agreement.


      B      09/00969/LBA
GRANT LISTED BUILDING CONSENT subject to the
following conditions:

(1)   The development for which Listed Building Consent is
      hereby permitted shall be begun before the expiration of
      three years from the date of this consent.
Reason: To comply with Section 18(1) (a) of the Planning
(Listed Buildings and Conservation Areas) Act 1990 as
amended by Section 52 (4) of the Planning and Compulsory
Purchase Act 2005.


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PLANNING COMMITTEE                  09/00971/RES, 09/00969/LBA,     ITEM 02
13 MAY 2010                                09/00968/CAC


(2)  Prior to the commencement of development, details and
     samples of the materials to be used for the external
     surfaces of the development shall be submitted to and
     approved in writing by the Local Planning Authority. The
     development shall be carried out in accordance with the
     approved details.
Reason: To enable the Local Planning Authority to exercise
control over the type and colour of the materials so as to
secure a satisfactory appearance in the interests of the visual
amenities and character of the locality as required by Policies
BE1, BE11 and DC1 of the Epsom and Ewell District Wide
Local Plan (May 2000) and CS5 of the Core Strategy 2007.

Informatives:

This permission is granted on the basis that the development
either meets or does not significantly conflict with the relevant
policies of the Epsom and Ewell District Wide Local Plan 2000,
the Local Development Framework Core Strategy 2007 and
does not cause demonstrable harm to interests of
acknowledged importance. The application was considered
having taken account of all material considerations and all
representations. The specific policies of the Local Plan and
Core Strategy taken into account were BE1, BE3, BE11, DC1
and CS5.


      C   09/00968/CAC
GRANT CONSERVATION AREA CONSENT subject to the
following conditions:

(1)    The development for which Conservation Area Consent
       is hereby permitted shall be begun before the
       expiration of three years from the date of this consent.
Reason: To comply with Section 18(1)(a) of the Planning
(Listed Buildings and Conservation Areas) Act 1990 as
amended by Section 52 (4) of the Planning and Compulsory
Purchase Act 2005

Informatives:

This permission is granted on the basis that the development
either meets or does not significantly conflict with the relevant
policies of the Epsom and Ewell District Wide Local Plan 2000,
the Local Development Framework Core Strategy 2007 and
does not cause demonstrable harm to interests of
acknowledged importance. The application was considered
having taken account of all material considerations and all
representations. The specific policies of the Local Plan and
Core Strategy taken into account were BE1, BE3, DC1 and
CS5.


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PLANNING COMMITTEE                    09/00971/RES, 09/00969/LBA,                  ITEM 02
13 MAY 2010                                  09/00968/CAC


Summary

West Park Hospital was completed in 1924 as the last of the Epsom cluster of five mental
hospitals.

Outline planning permission for the redevelopment of four of the hospitals was granted in
1997 but West Park was not included.

The hospital was designated in the Local Plan in 2000 as a major developed site in the
Green Belt.

The hospital closed in 1999. The NHS have disposed of the site but some parts of the site
will remain in NHS use.

The Council approved its own planning brief for the site in November 2003. The Masterplan
to the brief amongst other things indicated the provision of 325 dwellings and a
hotel/conference centre together with the one main point of access to serve the site. It also
envisaged the retention and conversion of high quality buildings at the core of the former
hospital within the West Park Conservation Area.

Outline planning permission was granted in March 2007 for about 360 dwellings,
hotel/conference facility and associated community building on a gross ground floor footprint
of no more than 27,550 sqm; open space; main access on to West Park Road and
emergency only access on to Christ Church Road (and planning permission in respect of all
related on-site infrastructure, roads, drainage and other services). This application broadly
followed the brief.

The present reserved matters application which excludes the proposed hotel/conference
facility site seeks approval of reserved matters (access, appearance, landscaping, layout
and scale) for 369 new dwellings, car parking, associated open space and landscaping. The
application does not seek to discharge other conditions of the outline permission. The
development would include 220 private and 149 affordable homes equal to a 40% provision
of affordable units.

Old retained ward buildings in the “horseshoe” of structures on the southern edge of the site
would be altered and converted to provide 95 private dwellings. The listed water tower would
be extended and converted to provide 4 flats.

The proposed layout follows the axial symmetry established by the retained buildings with a
formal central layout which includes urban squares with retained trees. There would be a
more irregular layout on the west side adjacent to a proposed parkland. The water tower
would form a landmark in the development and would be a focal point on an access road
that runs east west across the site and crosses a road running along the central axis of the
site.

The area of the site developed for dwellings would be about 0.57 hectare more than that of
the outline permission with the additional area located on the west side of the site. This
increase in developed area is judged acceptable due to the merits of the scheme overall and
the constraints of achieving a viable development.

It is judged that the proposals would have no greater impact than the existing development
on the openness and character of the green belt.



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PLANNING COMMITTEE                     09/00971/RES, 09/00969/LBA,                    ITEM 02
13 MAY 2010                                   09/00968/CAC

The proposals would provide an attractive residential development which would have a good
sense of place and would provide much needed affordable housing. It would accord with
policy for the redevelopment of a Major Developed site in the Green Belt and with the aims
of the West Park Brief.

In parallel with this application the applicants have made a formal request to vary the S106
agreement that was attached to the outline permission. As the issues raised by this request
are complex and involve several authorities, discussions are still ongoing and the request
will be reported to a later meeting of the Committee. The issues do not have any direct
bearing on the assessment of this application.

Consultations

The application has been advertised as for a major development and neighbours and
consultees have been notified.
At the date of this report letters of representation had been received from six residents, the
Epsom Protection Society, the Epsom and Ewell Cycling Action Group, the Surrey Wildlife
Trust, The Epsom Common Association and The Surbiton and District Bird Watching
Society.

The letters raise the following objections/concerns:
Hope emergency access to Christ Church Road will only be used as such and will not be
used as a shortcut, traffic generated should not be allowed to use Malden Rushett junction,
unreasonable increase in congestion of local roads, existing road network cannot cope with
the extra traffic, there should be proper cycle parks in development, details unclear about
energy efficiency measures and use of renewable energy, buildings demolished on the south
side (old office buildings) would leave an unsightly area (officer comment – these buildings
are not shown for demolition), layout too complicated and more affordable houses should
have been accommodated, ecological and bat surveys are out of date and inadequate, site
of historic interest and should be photographed before the demolition, development not
sustainable and there will be problems to meet recycling targets, should be no demolition of
listed building.

Epsom Protection Society – support the proposed extension and residential conversion of
the listed water tower.

Epsom Common Association – queries whether an Environmental Impact Assessment
Survey has been carried out and if it covered bats and birds. Officer comment - The
applicants have submitted ecological surveys which satisfactorily address the impact of the
proposals on bats and birds.

Epsom and Ewell Cycling Action Group – provision for cyclists and cycle routes inadequate,
should be better links to Epsom Common and Horton Country Park.

Officer comment - The roads on the site are likely to be lightly trafficked and their layout has
been designed to minimise speed. For these reasons it is considered that there is no need
for cycle paths in the development. The site would link on its east side to an existing
bridleway to Epsom Common and to the north to existing bridleways in Horton Country Park.

Surrey Wildlife Trust – applicant‟s bat survey not extensive enough and carried out at wrong
times.
The applicants have now carried out more extensive bat surveys of buildings and trees and
Natural England have been consulted on these and raise no objection.



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PLANNING COMMITTEE                      09/00971/RES, 09/00969/LBA,                     ITEM 02
13 MAY 2010                                    09/00968/CAC

The Surbiton and District Bird Watching Society – comment that buildings on the west part of
the site which are shown demolished could have barn owl nests and should be surveyed
before demolition and mitigation carried out, concerns about impact on bats. Recommend
conditions 6 to 9 to address their concerns.

Natural England - no objection subject to conditions relating to visitor impact on Epsom and
Ashtead Commons SSSI, the mitigation of any potential impacts on common lizard and
grass snake populations measures to enhance biodiversity including improving roosting
opportunities for bats in the retained buildings and bird nest boxes. Recommended
conditions 5, to 9 address their concerns.

Highway Authority – no objection.

County Ecologist and Biodiversity Team Manager – no objection subject to mitigation
measures. Conditions 5 - 9.have been attached to address this.

Environment Agency – The Environment Agency have raised objection for flood risk and
biodiversity reasons due to lack of information. The Agency is seeking to discuss its
concerns with the applicants.

Officer Comment - Whilst it is expected that the Agency‟s objections will not be resolved in
time for the meeting they relate to the discharge of conditions Nos.18-24 of the outline
permission and do not have any direct bearing on the details up for consideration under the
reserved matters. Consequently, this application can be determined in the absence of the
final details of an off-site drainage facility and the other information required under conditions
nos. 18-24

Site and Surroundings

The site which is approximately 2 km to the west of Epsom, covers 26.88ha, with an
estimated 15ha to be available as net developable area. There are a number of existing
buildings on the site, totalling 32,965m2 footprint. It is bounded by Christ Church Road to
the south, open countryside to the west, Horton Country Park (a site of nature conservation
interest) to the north and Horton Lane to the east. Beyond Christ Church Road lies Epsom
Common, part of which is a Site of Special Scientific Interest.

The hospital comprised an intensively developed core complex of buildings based on a
horseshoe layout with outlying villas at the edge of this complex. Further buildings and
extensions have been added over the period from the original construction in the 1920‟s up
until the 1990‟s. The hospital closed in 1999.

To the north of the application site lie „The Meadows‟ and the „New Cottage Hospital‟ which
would remain open. Other healthcare uses will remain to the south of the site including
offices and social club facilities.

The tall brick built water tower located towards the northern part of the site is a major
landmark and is a Grade 2 listed building.

Part of the site was designated a Conservation Area in 1997 and this was extended in 2003
to cover the majority of the built part of the application site.

The main hall of the hospital was damaged by fire about 5 years ago.




                                          Page 9 of 20
PLANNING COMMITTEE                    09/00971/RES, 09/00969/LBA,                   ITEM 02
13 MAY 2010                                  09/00968/CAC

Details of a proposed Tree Preservation Order covering the site were sent in May 2002 to
the agents acting for the Crown (owners of the site) seeking consent from the Crown for the
service of the Order but the consent has not been received. In 2003 the majority of the trees
were protected by the enlarged Conservation Area. The proposed layout of the site has been
designed in consultation with the Council‟s Tree Officer with the compatible trees kept and a
revised order is presented to this Committee.

The current reserved matters application relates to a site that excludes the proposed hotel
and conference centre that was part of the original outline permission.

Background and relevant Planning History

West Park Hospital was completed in 1924 as the last of the Epsom Cluster of five mental
hospitals.

Outline planning permission for the four other cluster sites was granted in 1997 for about
1500 dwellings and associated community and open space facilities.

West Park is not covered by that planning permission. It is designated in the adopted
Epsom and Ewell Local Plan (May 2000) as a Major Developed Site (MDS) in the Green Belt
(GB).

West Park hospital closed in 1999, but some parts of the site will remain in NHS use for the
foreseeable future.

00/01157/OUT - Outline planning permission for up to 500 dwellings; 8,500m2.
Hotel/conference facility; associated community uses; open space including access on to
West Park Road and on to Christchurch Road (and planning permission in respect of all
related on-site development including all infrastructure, roads, drainage and other services
(amended proposal). Withdrawn

“West Park Brief - approved by Environment Committee 19 November 2003. The
masterplan to the brief indicated the provision of 325 dwellings on the site. The master plan
also reflects the Council‟s commitment to restraining the physical areas of the site where
redevelopment will be allowed to occur as advised in PPG 2 Para C6. The plan implies a
building “envelope” beyond which no development will be allowed to occur.

02/00348/OUT - Outline planning permission for about 360 dwellings, hotel/conference
facility and associated community building on a gross ground floor footprint of no more than
27,550 sqm; open space; main access on to West Park Road and emergency only access
on to Christ Church Road (and planning permission in respect of all related on-site
infrastructure, roads, drainage and other services) (Amended proposal received
3.3.2005)(Outline: means of access not reserved). Permitted March 2007.

This outline permission was granted subject to conditions and an agreement under Section
106 of the Town and Country Planning Act 1990 requiring:

(a)   The provision of 40% affordable housing

(b)   The setting up and financing of a Community Development Trust (CDT)

(c)   The provision of public open space including play and recreational facilities and
      provision for the maintenance of this space and facilities with a payment being secured
      for its future maintenance


                                       Page 10 of 20
PLANNING COMMITTEE                         09/00971/RES, 09/00969/LBA,                    ITEM 02
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(d)       That the developer uses all reasonable endeavours to procure that in respect of the
          Building Research Establishment‟s „EcoHomes‟ Standard the development shall be so
          constructed as to achieve a classification of “Excellent”(or “Very good” insofar as
          “Excellent” may not be reasonably achievable)

(e)       The use of combined heat and power or similar technology for the hotel and
          conference centre such that a minimum of 10% of the energy requirement is provided
          by renewable resources.

(f)       The provision of a community building (or commensurate sum)

(g)       A contribution to the Local Education Authority towards education provision

(h)       The provision of an hotel/conference centre (min. 120 beds and approx. 6500m2
          footprint) within the development subject to securing a user by means of an agreed
          marketing strategy for a minimum period of 18 months

(i)       To secure agreed on and off-site highway works including:

             Various works for the provision and improvement to paths and facilities for
              pedestrians, cyclists and horse riders

             Provision of a right turn into the Epsom Common car park

             Provision of a lit shared cycle track and footpath from the Borough boundary to
              Malden Rushett

             A contribution towards junction improvements at Malden Rushett

             The carrying out of a feasibility study and preparation of a scheme for
              implementing a package of improvements along West Hill from Horton Lane
              towards Epsom Town Centre, including upgrading of existing footways, street
              lighting, tactile paving and crossing facilities, provision of side road entry
              treatments and other traffic management measures to improve facilities for the use
              of pedestrians and cyclists and improve highway safety

(j)       A Green Travel plan

(k)       Contributions towards:

             the provision of a bus service from and within the site to Epsom Town Centre

             the costs of providing all the necessary public transport infrastructure to serve the
              site including bus stops, poles, shelters, information systems, seating, lighting, bus
              bollards/barriers etc.

             the maintenance of any new pedestrian/cycle crossing equipment all public
              transport infrastructure, street furniture, street lighting, soft landscaping and
              retaining structures for a period of 15 years

(l)       The removal of above-ground pipes within the site.

(m)       A contribution to the Primary Healthcare Trust for provision of medical services




                                            Page 11 of 20
PLANNING COMMITTEE                    09/00971/RES, 09/00969/LBA,                   ITEM 02
13 MAY 2010                                  09/00968/CAC

The S106 agreement dated the 27th March 2007 was between the Urban Regeneration
Agency (English Partnerships), the Borough Council, Surrey County Council and the Royal
Borough of Kingston Upon Thames.

The applicants in a letter of the 22nd December made a formal request to vary the S106
agreement. As the issues raised by this request are complex and involve several
authorities, discussions are still ongoing and the request will reported to a later meeting of
the Committee.

This outline application proposed about 360 dwellings on a residential developable area of
10.92 hectares.

09/00167/SCR - Erection of about 360 residential dwellings pursuant to outline planning
permission EPS/02/00348/OUT - Application for screening opinion on whether the proposal
is "EIA development" within the meaning of the Town and Country Planning (Environmental
Impact Assessment) (England and Wales) Regulations 1999. Decision -The proposals are
not "EIA development"

Current proposal

This report deals with three separate but related applications. The first seeks Approval of
Reserved Matters under the original outline permission for the redevelopment of this site, the
second seeks Listed Building Consent for works to extend and convert the listed water tower
into four flats and the third seeks Conservation Area Consent for various buildings and
structures on the site within the West Park Conservation Area.

The approval of reserved matters application, which excludes the proposed hotel/conference
facility site, seeks the approval of details of access, appearance, landscaping, layout and
scale for 369 new dwellings, car parking, associated open space and landscaping. The
development would include 220 private and 149 affordable homes equal to a 40% provision
of affordable units. Roseberry Housing Association would be the Registered Social Landlord
for the affordable homes and these homes which would all be new build would be located in
clusters principally in the central and eastern parts of the site. The old retained ward
buildings would be altered and converted to provide 95 private dwellings.

All the affordable dwellings would be constructed to a minimum of Code for Sustainable
Homes Level 3 and the private to a standard known as Eco-homes “Excellent”. The different
standards are a result of the requirements of the Housing Association and the Homes and
Communities Agency.
The unit type and tenure would be as follows:

Dwelling type           Private                 Affordable              Total

1 bed                   26                      68                      90
2 bed                   69                      57                      130
3 bed                   59                      20                      79
4 bed                   55                      4                       59
5 bed                   11                      0                       11
Total                   220                     149                     369

The footprint area of the new and retained buildings within the application „red outline‟
boundary would be 22,596 square metres and the footprint of the existing buildings in the
„blue line‟ area (the hotel/conference centre site) 4,314 square metres giving a total of


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26,910 square metres. This total is less than the footprint of 27,550 square metres stipulated
in the outline permission.

The applicants have calculated that the area that would be developed for the residential
element of the scheme, including refurbished existing buildings is 11.49 Ha.
This includes the section of highway between the site entrance and the junction with the
access to the cottage hospital. This would result in a density of 32.1 dwellings per hectare.
This is compatible with the agreed development brief and relevant Development Plan
policies.

The proposal shows the retention of the most attractive old ward buildings that have a
horseshoe layout and formed the main edge of the complex of buildings of this former
hospital. The new development follows the symmetry of these old buildings with a central
road leading from the old administrative building north to an urban square and a new 4
storey block of flats. This block is close to the listed water tower (equivalent to nine domestic
storeys in height) which adjoins the west side of the urban square. The water tower would be
altered, extended and converted to provide four one bed flats. The main access road leads
from West Park Road in the east corner of the site to run east west and passes through the
central square to be visually terminated by a shallow crescent of six two and half storey
houses.

Other than the 4 storey block of flats mentioned above the development would have a mix of
2 and 3 storey buildings though some of these would have accommodation in the roof.
Typically the highest buildings would be in the central and eastern areas of the site where
there would also be more terraces and to the western edge the development would be less
dense, lower, detached and semi-detached.

The layout includes three green squares and the retention of the large open space in the
north west corner of the site and other informal amenity areas. The green squares
accommodate a large number of mature trees and these would be supplemented with
additional planting as will the other areas of open space. There would be two local equipped
play areas.

Parking across the site would be at a ratio of 1.78 spaces per dwelling.

Refuse storage would be provided for the flats in the development mainly by providing stores
within the ground floor of those buildings but with a couple of outside stores in car park
areas. Houses would store their bins to their rear with side passages so that they can be
brought forward of the houses for collection.

The proposals do not include the provision of a community building. The proposal is that
there would be a commuted sum as a contribution for such a provision elsewhere to serve
the development and the rest of the hospital cluster sites.

The reserved matters application is supported by the following documents:

    1.   Planning application supporting statement
    2.   Design and access statement
    3.   Historic building appraisal and Conservation Area Report
    4.   Justification statement
    5.   Transport assessment and residential travel plan
    6.   Hydrology report
    7.   Visual impact assessment

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    8. Arboricultural materials and method statement
    9. Ecological assessment
    10. Bat reports
    11. Management statement
    12. Statement of public consultation
    13. Best practice and sustainable demolition and construction statement

The applicants state that there has been no material interest in the conference hotel site
despite over 18 months of marketing for this use. Whilst care home operators have
previously expressed initial interest, there have been no serious enquiries or formal offers.
They also say that an obvious and possibly the most viable option would be for an „all
residential‟ conversion/ refurbishment. This site is excluded from the current application.

Greenbank which is an existing building to the south of the hotel conference lies within the
application site. It was originally proposed that this building be demolished to provide a
proportion of the parking for the hotel/conference centre. There are no proposals for this
building as part of the current application but it is understood that the applicants are
exploring residential development of its site which would be the subject of a separate
application.

Policy

The whole of the site is designated as a major developed site in the Green Belt and is
therefore subject to all the policies that relate to such an area. The principles of the
development now proposed have been established through the development plan, the
approved West Park Development Brief and the outline planning permission.

Other development plan policies relevant to the application:

Epsom and Ewell District Wide Local Plan 2000
GB7            Major developed sites in the Green Belt – infilling
NE2            Landscape
NE5            New development (trees and hedgerows)
NE7            New development –landscaping schemes
NE8            Nature conservation and landscape
DC1            General policy for development control
BE1            Built environment
BE3-5          Conservation areas
BE11           Listed buildings
BE19           Design of new buildings
HSG11          New residential development
MV8            Parking

Core Strategy July 2007
CS1              Creating sustainable communities
CS2              Green Belt
CS3              Biodiversity
CS4              Open spaces and green infrastructure
CS5              The built environment
CS6              Sustainability in new developments
CS7              Housing provision
CS8              Broad location of housing development


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CS9               Affordable housing and meeting housing needs
CS12              Developer contributions to community infrastructure
CS13              Community, cultural and built sports facilities
CS16              Managing transport and travel

South East Plan 2009
SP5              Green Belts
CC1              Sustainable development
CC4              Sustainable design and construction
CC6              Sustainable communities and character of environment
CC7              Infrastructure and implementation
T1               Transport – manage and invest
T4               Parking

Epsom „Hospitals Cluster‟ Conservation Areas:
St Ebba‟s CA, Long Grove CA, Horton CA, The Manor CA and West Park CA.
Character Appraisal & Management Proposals
Draft January 2009

Planning Considerations

This application relates to the details of a major development which has already been
approved in principle. The fundamental issues have therefore already been agreed but it is
necessary to consider a range of detailed issues about the design, layout and appearance of
the scheme and the specifics of implementation.

Development quantum

The outline permission for the site is for „about 360 dwellings‟. Further to this, condition 25 of
the outline permission states that exceeding this figure should be agreed by the Local
Planning Authority.
The current application is for 369 dwellings
This increase is relatively insignificant and justified by:

   Aspirations to make best use of this previously developed site
   Good design solutions for the site including the retention of the best of the existing
    buildings in terms of their design and significance as part of original layout of hospital,
    the retention of trees and provision of urban open space
   Finding a beneficial use for the water tower with its conversion and refurbishment to
    provide four dwellings
   To ensure the scheme remains viable and deliverable given the prevalent challenging
    market conditions
   The delivery of much needed 149 affordable dwellings

The Masterplan to the West Park Brief showed redevelopment largely confined to the area
enclosed by the horseshoe of existing buildings by the retained NHS site to the north but
with a small area of new development to the north west of the main area and to the west of
the Meadows. The layout now put forward differs from the Masterplan in that there would be
more developed area to the west and north west beyond the retained buildings. The reasons
and the justification for this increase in the developed area are similar to those set out above
for the increase in the number of dwellings.




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Layout, design and character of the green belt

The proposals have been designed to respect the original layout of the former hospital and
to retain the symmetry of the historic layout of that hospital together with the retention and
conversion of the most attractive original echelon buildings and the listed water tower within
the conservation area. Three urban squares are proposed which incorporate mature trees
and there are other informal areas of urban open space. A large number of trees would be
retained in the layout and extensive additional landscaping is indicated. Full landscaping
details are not yet available but these will be submitted in advance of the development. An
additional condition will be required to secure this. The woodland of the parkland
surrounding the site that is a major feature of the landscape and screening of the site would
be retained.

The proposals comprise a range of 2 to 4 storey buildings with the highest in the central area
of the site and the lowest on the western edge by the parkland area.

Only one 4 storey building is proposed, positioned next to the water tower. Three storey
buildings have also been placed in proximity. This design solution is considered appropriate
to provide a transition between building heights whilst ensuring that the properties
surrounding the converted water tower are not dwarfed and that they hold their own integrity.

Areas of the development on the west and north west edges of the site would lie beyond the
edge of existing development on more open land within the site itself and beyond this by
fields in the Royal Borough of Kingston. One of the areas of the development would also
come closer to Christ Church Road. These areas are already screened from the outside of
the site by existing landscaping and with proposed new landscaping indicated it is judged
that they not have a greater impact on the openness and character of the green belt and
views of the development from outside. The development would not lead to a major increase
in the developed proportion of the site.

Overall, the proposals would have no greater impact than the existing development on the
openness and character of the green belt as they would not exceed the height of existing
buildings, would not exceed the existing footprint and would not lead to a major increase in
the developed proportion of the site. The proposals would thus comply with Local Plan Policy
GB7.

The proposed site layout has been designed to ensure there is good permeability across the
site which connects up with routes leading away from the boundaries. The principal route
leads from its entrance off West Park Road to an east west avenue with a route around a
central square of development around which a bus service will run. Access into the various
housing areas around the site is made from secondary routes with shared surface lanes.

Leading on from the movement hierarchy of the site the applicants show the creation of four
principal character areas:

      Retained buildings
      Urban core
      Urban edge
      Rural edge

The buildings in the urban core would be predominantly terraced reflecting the style of the
existing buildings. The character softens away from the urban core into the urban edge
areas with the introduction of more semi-detached and detached houses. The rural edge



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areas out to the western fringes of the site are predominantly where the large detached 3, 4
and 5 bed houses would be located and the layout is more spacious.

The design of the new buildings is contemporary in part and more traditional in others
particularly for the houses on the west part of the site. Elevations would be of facing brick
with some use of rendered panels and tile hanging, and roofs of plain tiles or slate. The main
brick used is shown to be red which follows the red brick of the retained existing buildings.
Yellow brick is shown in the area close to the listed water tower which is mainly built of a
yellow brick.

The application refers to the use of man-made slate even on the retained buildings. These
existing buildings which are in a Conservation Area are roofed at present with natural slate
and it is considered that the use of the man-made material is not acceptable. A condition is
recommended requiring details of the external materials which makes it clear that the use of
man made slate for the retained buildings is not approved. It is also considered that more
than one yellow and one red brick should be used to provide some variety throughout the
development.

The listed water tower would have a proposed 8 storey extension of a modern design in
facing brick and curtain wall glazing to provide a staircase and lift to facilitate its conversion
into four one bedroom flats. Additional narrow windows would also be inserted in the street-
facing elevation to provide sufficient light to living space. A bin store is proposed within the
base of the new access tower. These proposals to the listed building would be in keeping
with its special architectural and historic character and would provide it with a beneficial use
and thus secure its future.

The proposals include the retention of a number of buildings, all of which make a positive
contribution to the character and appearance of the West Park Conservation Area. However
a large number of buildings are deemed to make little contribution to the overall setting and
are proposed for demolition. Certain elements of the retained buildings, generally at the rear,
are also proposed for demolition which would not affect their contribution to the conservation
area and would facilitate a proper layout and their conversion. All these demolitions are the
subject of the application for conservation area consent.

The residential layout would provide a high level of natural surveillance throughout which will
enhance the security and safety of the development. Privacy issues have been carefully
considered in the development layout and the design of the blocks. However, there are
some locations where some overlooking would be possible at distances of 11 metres or
more. Here, it would be possible to employ obscure glazing to minimise any loss of privacy.
A condition is proposed that seeks details of all windows to be so obscured.

Some of the L-shaped blocks have little communal amenity space. However, given the
generous provision of communal space across the scheme and the plenteous vegetation,
the lower standard of provision is not such that sub-standard living conditions would be
created on this site.

All units would have access to adequate cycle and refuse storage.

Overall, the layout of the development has been subject to many iterations and refinements
in consultation between the applicants and the Council during pre-application discussions.
Many detailed issues relating to tree protection, visual appearance, road layout and parking
have been considered. The proposals reflect the output from that process and will produce
a development of a high quality, utilising the best of the existing buildings and retaining most
of the mature vegetation.


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Landscape

The proposals include the retention of the existing landscape setting of the site. The scheme
proposes three urban squares and the retention and the enhancement of the large open
space located in the north west corner of the site, known as the Parkland area and other
informal amenity areas. The urban squares would accommodate a number of mature trees
and these would be supplemented with additional planting and as would the Parkland and
the remainder of the site.

The applicant‟s tree survey identified 97 individual trees and 7 groups for removal for
reasons of sound arboricultural management. 68 individual trees, 18 full groups and 3 partial
groups are proposed for removal to allow for implementation of the proposed development.
Trees to be retained on site would be protected and extensive additional planting is indicated
to add to the fine quality of the landscaping of the site and to compensate for any felling.

Ecology and biodiversity

The applicant‟s ecology consultants have carried out surveys of the buildings on the site for
bats. No active/ recently functioning bat day roosts were found. Small, active, bat night
roosts/feeding perches were found. They advise that the buildings have low potential for any
maternity bat roosts to be present. Emergence surveys of the buildings would be unlikely to
find any significant roosts but may result in finding roosts of singleton bats. The presence of
night roosts suggests that long eared bats must roost relatively close to the site.

With regard to mitigation and opportunities for enhancement they suggest that the larger
retained buildings could all be made suitable to support day roosting bats with the use of bat
access slates and gaps under raised ridge tiles and that such measures would outweigh the
possible impacts associated with the proposals.

The consultants have also identified several trees that are proposed for felling due to their
condition or to facilitate the development that have a potential for bat roosts or perches.
They recommend that these trees be subject to an arboricultural health and safety risk
analysis. If these trees are considered to pose and unacceptable high level of risk, they
should be reviewed in conjunction with a licensed bat ecologist to verify if any measures can
be taken to reduce that risk to an acceptable level.

An old barn owl nest was found in Villa 1 and this could be mitigated by the provision of a
suitable located nest box. Condition 9 is attached to address this concern

Natural England have written to confirm that it is satisfied with findings of the applicants‟
ecologist for bats and owls subject to the mitigation measures recommended secured in
appropriately worded conditions. It is understood that the County Ecologist and Biodiversity
Team Manager has no objection.

Natural England also recommends conditions relating to visitor impact on Epsom and
Ashtead Commons SSSI and the mitigation of any potential impacts on common lizard and
grass snake populations. Condition 5 is attached to address these concerns.

Natural England recommend a condition requiring the applicants to carry out before and
after visitor surveys of the Commons and appropriate contingency measures in proportion to
any increase. It is considered that such a condition would be unreasonable and
disproportionate.




                                        Page 18 of 20
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Surface water strategy

The applicants propose a Sustainable Urban Drainage System (SUDS) which would involve
the discharge of surface water from the development onto Council land adjacent to the site,
within Horton Country Park. This would create a pond on the site of a previous pond and a
wetland area which would be beneficial for biodiversity and which would use the natural
topography to effectively drain the site. Any SUDS scheme in the Country Park would have
to be approved by the Environment Agency.
Because the site is underlain by London Clay and the Environment Agency advises that the
site has a shallow water table infiltration type SUDS are unsuitable within the application
site.

The Environment Agency have raised objection for flood risk and biodiversity reasons due to
lack of information. The Agency is seeking to discuss its concerns with the applicants.

It is not expected that the Agency‟s objections will be resolved in time for the meeting but, as
drainage issues are to be determined under drainage conditions Nos.18-24 of the outline
permission, their resolution does not affect the assessment of reserved matters under
consideration here.

Sustainability

The application contains no details of works and measures to promote sustainability both
during and after construction including how a minimum of 10% of the total energy
requirements would be provided from renewable energy sources.
The applicants have written to state that they are committed to providing at least 10% of the
site‟s energy from renewable energy sources but are not in a position to submit details at this
stage because they are keen to avoid submitting a sustainability strategy that is neither
appropriate nor deliverable on the site. They state that they are in discussion with the
Housing and Communities Agency and will submit an HCA approved Sustainability Strategy
at a later date. (Recommended condition 4)
In any case, the applicants are committed to achieving a high standard of sustainability in
the design of the new housing as required by the Section 106 agreement which relates to
Eco-Homes Standard “Very Good” or “Excellent”

Highways

Much of the existing road infrastructure of the site would be retained and improved. In
particular this includes the curving road that skirts the southern edge of the site.

The application accords with the approved highway access proposals established at the
outline stage in the terms of an improved all purpose highway access via the existing
roundabout on Horton Lane and an emergency access to Christ Church Road.

A proposed new bus service will enter the site and circulate around the central square
ensuring all the dwellings are well within the County Council guideline maximum distance of
400m. The roads of the bus route would have a width of 6.5m to accommodate their
manoeuvres. The parking layout of the central square has been designed to minimise street
parking that could hinder the progress of a bus.

The retained NHS units to the north of the site will continue to have access from the access
road along the north eastern boundary of the site. There would also be an access to this
NHS site in the area of the „Meadows‟ from a road to the north of the water tower.



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Proposed parking across the site would be at an average of 1.78 spaces per dwelling. In
total there would be 659 spaces on site, including 168 on plot designated surface spaces,
144 on plot garage spaces, 54 designated visitor spaces and 293 allocated off plot parking
spaces.

This provision is broadly in accord with the Planning Brief that outlined an overall average
figure of no more than 1.5 spaces per dwelling and is in line with the Government‟s aim to
reduce reliance on the use of the motor car.

The roads on the site are likely to be lightly trafficked and their layout has been designed to
minimise speed. For these reasons it is considered that there is no need for cycle paths in
the development.

Archaeology

An evaluation of the site was undertaken and 63 trenches were excavated in October 2007.
No archaeological deposits or features were found. The conclusion was that the site has
very low potential for archaeological deposits. This is thought to be due to the low level of
historic human occupancy and the recent construction on the site.
A comprehensive archaeological evaluation of the site has been submitted and Surrey‟s
Principal Archaeologist has confirmed that condition 14 (implementation of an archaeological
scheme of work) of the outline permission can be discharged.

Allotments

The submitted layout indicated an area for possible allotments in the northern part of the
parkland on the west part of the site.
This area is shown close to the existing car park for the cottage hospital. Such a facility
would clearly need vehicular access for allotment holders.
The applicants have now confirmed that the NHS car park can not be used to service
the suggested allotments and unfortunately, therefore, access cannot be obtained to service
the allotments.
The applicants also write that given the extensive constraints of the master plan, there are
no other alternative locations on West Park where allotments could be positioned and they
are currently of the view that although provision is desirable on the site, it is not deliverable
at this time.

The loss of allotment provision is regrettable but there is no requirement for this provision in
the outline permission.

Conclusions

The applications before Committee address the requirements laid down in the Council‟s
approved Development Brief and accord with the outline planning permission. They are fully
in accordance with planning policy and would result in an acceptable development of the last
Hospital Cluster site. The application for approval of reserved matters is acceptable in terms
of planning policy for the redevelopment of a Major Developed Site in the Green Belt. The
application for the listed water tower would be in keeping with the architectural and historic
character of this landmark building on the site. The application for conservation area consent
for the demolition of many of the buildings on the site is acceptable because the buildings of
identified landscape importance are to be retained. All three are recommended for approval
with proposed necessary conditions.

Contact: Jacy Yates

                                         Page 20 of 20

				
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